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    题名: 參與的理想或授能的幻想？從民主行政重構政府績效管理制度
    The ideal of participation or the illusion of empowerment? Reframing government performance management from democratic administration
    作者: 黃重豪
    Huang, Chung Hao
    贡献者: 陳敦源
    Chen, Don Yun
    黃重豪
    Huang, Chung Hao
    关键词: 民主行政
    分權參與
    績效管理
    考績制度
    democratic administration
    decentralization and participation
    performance management
    performance evaluation of civil servant
    日期: 2010
    上传时间: 2012-10-30 10:46:03 (UTC+8)
    摘要: 【研究目的】

    管理理論從素樸的績效評估過渡到發展性的績效管理，反映了從集權控制轉向分權參與的趨勢，一方面更加著重於人力資源發展，對政府部門而言，目的尚在鞏固文官的中立能力。惟我國以績效管理為名進行考績制度的改革時，似乎仍執著於命令與控制手段的討論。準此，本研究首先檢討現行考績參與機制的良窳，再探詢公務人員對於考績制度民主化的認知，以此剖析制度轉變可能遭遇的困境，最後依據實務可行性重構參與式考績制度。


    【研究問題與研究方法】

    本研究採質化方法逐一針對研究問題分析之，分別為考績制度是否有體現民主價值的必要？考績委員會是否有助組織管理的民主化？公務人員是否認同考績制度體現民主價值？如何從民主行政角度設計參與式考績制度？本研究以次級資料及文獻分析法論證考績制度體現民主價值的必要性及考績委員會的制度起源；再從深度訪談法分析考績委員會是否發揮功能，以及公務人員對考績制度民主化的認知及接受度；最後綜合所有質性資料提出參與式考績制度的改革建議。


    【研究發現】

    本研究從理論與訪談論證考績制度的權力集中化將扼殺文官的專業能力，而考績委員會雖企求藉民主參與確保程序正義，卻仍將上下從屬的權力結構複製進獨立委員會，失卻水平制衡的功能。而以部分機關試行績效管理的經驗及深度訪談的假設性詢問發現，行政人員普遍無法接受考績制度開放民主參與，僅期盼獲悉考核原委，故仍將制度正義寄託在考核者身上。推其原因在於集體行動的邏輯、橫向組織力量的匱乏，以及家長式領導的文化，使組織民主遭到實用性價值的貶低。最後本研究在不侵犯管理權威的前提下，從資訊公開角度主張考核資訊透明化及考績委員會「實質參與」，作為考績制度改革的建議。
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